I've checked, and at Elmer Davis you can in fact keep up to 5 bass under 12". Here's the reg:

ELMER DAVIS LAKE
Owen County
Possession or use of shad for bait is prohibited.
• Largemouth Bass: 12 to 15-inch protective slot limit. All largemouth bass between 12 and 15 inches in length must be released immediately.

Elmer Davis is a much smaller lake, with no shad at all. I guess it's kinda apples and oranges.

DALE HOLLOW LAKE
• Smallmouth Bass: 16 to 21-inch protective slot limit. One fish over 21 inches and one fish under 16 inches may be kept daily.